The 2015 Bloomington Parks and Recreation Department Master Plan provides guidance and direction to civic
leaders and residents about decisions that affect the needs, distribution, relationships, and trajectory of parkland, recreation facilities, recreation programs, and other services within the Bloomington community. The master plan is divided into two parts: The Setting and The Plan.

PART 1: THE SETTING

PART 2: THE PLAN

Summarizes background research conducted during
the planning process and found in supplemental topical reports.

Chapter 1: Introduction provides an introduction to
Bloomington and the planning process.

Chapter 6: Community Vision and Goals includes a
vision and mission statement, six goals, policies, and
actions required to implement the plan over the next
10 years.

Chapter 2: Planning Frameworks reviews the critical
concepts, policies, and mandates used to develop the
plan.
Chapter 3: The Bloomington Parks and Recreation System includes an inventory and description of the existing system of land, facilities, and programs provided
to the community through the Department and other
organizations.
Chapter 4: Community Trends contains background
and demographic projections about Bloomington and
how it will grow over the next 10 years.
Chapter 5: Needs Assessment presents the recreational needs of the community, including a recreation
demand analysis, benchmark city analysis, and recommended level of service (LOS) model.

Chapter 7: Financial Framework provides overall funding
and cost recovery information about the Department.
Chapter 8: Systemwide Plan provides the physical
components, projects, and programs necessary to
develop a complete integrated system of interrelated
parks. It also provides the development structure for
implementation of the plan based on three funding
scenarios: Fiscally Constrained, Action, and Vision.
Chapter 9: Implementation Plan identifies the strategic
actions the Department should take in the next three
years to begin the successful implementation of the
master plan update.

PART ONE

THE SETTING

Cascades Trail Grand Opening

CHAPTER 1

INTRODUCTION
The Bloomington Parks and Recreation Department (Department) is a major
community asset that repays residents’ investments every day. Thanks to the
Department’s facilities, lands, and programs, residents enjoy higher property
values, improved neighborhoods, and enhanced lives and job performance
as they exercise, play, and relieve stress in a greener and more beautiful and
sustainable urban environment. As a sign of the Department’s commitment to
serving Bloomington, it is one of only four parks and recreation departments
in the State of Indiana to be accredited by the National Recreation and Park
Association’s Commission for Accreditation of Park and Recreation Agencies (CAPRA). Achieving this status indicates that the Department has met
national standards of best practices for providing high-quality services and
experiences.
The 2015 Bloomington Parks and Recreation Department Master Plan is intended to help today’s leaders and residents make sound and fruitful decisions that will help the community maintain and enhance the Department’s
programs, events, parks, trails, and facilities from 2016 through 2020.

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Bloomington Parks and Recreation Department

Overview of Bloomington
Location

With a 2014 population of approximately 83,322, Bloomington is the seventh
most populous city in Indiana. Located approximately 50 miles southwest of
Indianapolis, the city occupies 23.16 square miles. Bloomington serves as the
county seat of Monroe County and is the home of Indiana University. The
Bloomington Parks and Recreation Department serves the people of Bloomington as well as people from nearby communities. Parks, trails, and facilities
that the Department administers are found in the map that follows.

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Brief History of Bloomington Parks and Recreation Department

The Bloomington City Park Board, responsible for the acquisition, development,
and maintenance of city parklands, held its first meeting on December 7, 1921.
The Board formed the Department of Recreation in 1946. The Department was
originally governed by the City Recreation Council, which consisted of the School
Board, the Park Board, the Recreation Commission, and seven members at-large.
In 1948, the governing body was changed, and the Department was sponsored
by the Board of Education and the Board of Recreation. The Department of
Parks and Recreation held its first meeting on June 26, 1952, bringing the efforts of
the City Park Board and the Department of Recreation into one department. This
structure serves the park and recreation needs of the City today.1

About the Master Plan Update
Purpose

This plan provides the Bloomington Parks and Recreation Department with a
five-year master plan. The plan will provide standards for levels of park and
recreation services and facilities in the city, along with development priorities
and an implementation strategy. It will help the City of Bloomington to more
equitably allocate services and to meet identified deficiencies and shortfalls
in the system for the future.
Besides providing an inventory of the facilities, properties, programs, and
events, and an analysis of use and demand, the Master Plan also documents
the extensive public and stakeholder input obtained throughout the planning
process. This community input provides a framework for confirming the Master
Plan’s goals. The synthesis of information, public feedback, and measurable
and definable goals and objectives can help the community act and invest
in the system in a rational, systemwide approach that aligns with community
priorities.

Community Engagement

A critical part of the master plan process is the community engagement process, which is necessary to effectively deliver a community-oriented park and
recreation system. A balanced, open, and collaborative engagement process
builds community-wide trust in the plan and the process. Community engagement was carefully planned in order to create an outcome that will secure support for the Master Plan by the City Council, Bloomington Board of Parks Commissioners, advisory groups, city management, city administration, Department
staff, and the diverse groups that utilize the Department’s services.
Online engagement was provided via
www.bloomingtonmasterplan.com.

Community engagement during the planning process included the following
key elements:
• Stakeholder Interviews – Between March 26 and April 1, 2015, the project
team interviewed key stakeholders from the community. These stakeholders were identified in consultation with the Department. Eppley
Institute staff conducted these interviews with individuals representing a
wide variety of user groups, community leaders, and city staff.
This paragraph is an excerpt from: City of Bloomington, Indiana, Parks and Recreation Master Plan Update,
October 2007, p. 1.

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Bloomington Parks and Recreation Department

• Public Surveys – A random, probability sample of the community was
drawn to provide statistically representative survey results. Surveys were
distributed to this sample in May 2015. By the close of the survey on June
26, the Eppley Institute had received 388 responses, which was sufficient
for a representative valid sample. The Eppley Institute also created an
identical, public survey that was available at www.bloomingtonmasterplan.com. The survey was available to any member of the community as
an additional tool for engagement via an online form. The Eppley Institute kept results of this supplemental survey separate in order to preserve
the statistical validity of the representative sample survey.
• Online Engagement – The public was kept informed about the project
through www.bloomingtonmasterplan.com, a non-city website designed
to share information and collect feedback. Additionally, Mick Renneisen,
Administrator of the Bloomington Parks and Recreation Department,
provided updates to The Herald-Times in order to increase awareness
through both online and print media.
• Public Engagement Workshops – Eppley Institute and Department staff
held three public open houses for this Master Plan. The workshops were
held May 13, 2015 at the 50+ Expo at Twin Lakes Recreation Center, May
16, 2015 at the Farmers’ Market, and June 4, 2015 in the City Council
Chambers at City Hall. The workshops allowed the project team to receive more public comments that would enable them to refine consensus and develop specific strategies for the master plan. These meetings
yielded 29 additional comments.
• Park Board Involvement – After an Eppley Institute presentation to the
Board in February 2015, the Bloomington Parks and Recreation Department Administrator briefed the Park Board on master plan progress
throughout the project.

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CHAPTER 2

PLANNING FRAMEWORKS
Bloomington’s parks and recreation programs, events, parks, trails, and facilities are tangible ways to shape neighborhoods and the community as a
whole. Communities like Bloomington are continuously evolving in ways that
reflect ongoing changes to economic, political, social, and environmental
processes. Residents, local organizations, and their governments collaborate
to produce plans to inform and guide that evolution and thus pursue the best
future possible. This section summarizes the most up-to-date plans that guide
Bloomington’s development.

Parks and Recreation Master Plan Update: 2007-2012

The most recent master plan for the Bloomington Parks and Recreation Department was effective 2007-2012. Like this newly developed plan, it provided
the Department with goals and action plans that it could use during the life of
the master plan. Ultimately the 2007-2012 master plan established nine goals
for the Department with associated strategies and objectives. The goals for
the 2007-2012 plan were:
• Maximize the Planning Effort
• Increase Traditional and Alternative Funding Sources
Bloomington Parks and Recreation
Department 5-Year Master Plan 2007-2012

• Evaluate Pricing and Cost Recovery
• Increase Partnerships and Collaborations
• Ensure Continued High Level of Service in Parks
• Increase Level of Service for Parks and Trails
• Increase Level of Service for Indoor Recreation Services
• Evaluate Programming and Collaborative Efforts
• Evaluate Marketing and Communications Practices
Interestingly, several of the goals identified for the new Master Plan echo the
goals found in the previous plan. This overlap appears to be due in large part
to the fact that community needs have not changed dramatically since the
Department enacted the last plan. An important difference between the
plans is the Department’s budget. The emphasis on funding, partnerships,
continued high level of service, and trails found in the 2007-2012 master plan
are incorporated into goals found in this new plan. One important difference
between the 2007-2012 plan and this Master Plan is that the older plan did not
account for the recession that crippled the American economy beginning in
2008. As a result, this new plan is much more measured in terms of finances
and puts a greater emphasis on maintaining existing parks, trails, and facilities.

This plan guides the development of bike routes,
bike lanes, sharrows, bicycle boulevards, side
paths, connector paths, greenways, multi-use
trails, and unimproved trails in the City of Bloomington. The City devised the plan to undertake
“an important step toward improving the health,
fitness, and quality of life of its residents. [The plan]
represents a commitment by the City to design,
construct, and maintain a network of safe, convenient, and attractive bicycle and pedestrian
facilities for commuting and recreational use
throughout the City.”2 The plan was designed to
be reviewed frequently, and a new review would
be warranted in light of the findings for this Master
Plan. The BPTGSP indicates that multi-use paths,
like the ones that the Department administers,
should be pursued in the urbanizing ring of the town, and Master Plan data
support this approach. The BPTGSP features several suggested “future paths”
for trails that could be administered by the Department. The Department
should analyze these potential trails and determine which of these trails would
best fit the needs that are identified in this Master Plan.

Bicycle and Pedestrian Transportation
& Greenways System Plan 2008

City Facilities Report 2010

The primary goal of this report was to provide municipal facility and service
delivery information to the Plan Commission and City Council for use in the
land use/zoning approvals process. This document is a concise report of current (i.e., 2010) and future municipal facility needs and the related services
that can be integrated into the City of Bloomington’s capital improvement
process. The report analyzes facilities administered by Bloomington Transit, the
Fire Department, the Parks and Recreation Department, the Police Department, the Public Works Department, Transportation Facilities, and the Utilities
Department. This report notes service area deficiencies in the far north, northwest, southwest, southeast, and eastern edges of the City for the Department.
Work done since 2010 has addressed most of these deficiencies, leaving the
east side of the City alone in need, particularly in terms of trails, community
parks, and sports parks. The Facilities Report recommends expansion of Jackson Creek Trail to the east along Sare Road toward Smith Road and suggests
a new community park near the intersection of Smith Road and E Moores
Pike. These suggestions align with the goals proposed in this Master Plan. Other
suggestions, such as the completion of the B-Line Trail and the groundwork for
Switchyard Park, are already underway. To save money, the report suggests
closing the Allison-Jukebox Community Center and moving programming to
Twin Lakes Recreation Center. Other items in this report, such as replacement
2

2010 City Facilities Report

Bicycle and Pedestrian Transportation & Greenways System Plan, p. iv.

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of Frank Southern Ice Arena, are too expensive and do not address community needs as highlighted in public engagement results and additional research.
It is important to note that this Facilities Plan was developed before Indiana
University Health-Bloomington Hospital announced that it would build a new
hospital near 10th Street and the 45/46 Bypass and abandon its current location. This significant change is being considered with this Master Plan.

City of Bloomington Housing and Neighborhood
Development Department Consolidated Plan
2015-2019

Developed by the Housing and Neighborhood Development Department
of the City of Bloomington, this report is a plan that the City will use to pursue
goals outlined by the U.S. Department of Housing and Urban Development as
a requirement for administering federal programs like the HOME Investment
Partnership Project and the Community Development Block Grant (CDBG).
The Consolidated Plan features two strategies that address Bloomington’s
priority needs and directly impact the Parks and Recreation Department.
City of Bloomington Housing and Neighborhood Development Department
Consolidated Plan 2015-2019

Strategy 3 calls for the City to “Create or improve infrastructure in target areas”3 and notes that one method for achieving this is to “provide funding for
pedestrian pathways such as sidewalks (including curb improvements), ADA
transition ramps, and multi-purpose pathways.”
Strategy 4 calls for the City to improve public facilities. To facilitate this, the
plan calls for funding to be provided to “non-profits for the improvement of
public facilities that are primarily used by HAND target populations.”
Strategies 3 and 4 represent areas in which the Parks and Recreation Department could potentially collaborate and utilize funding to improve trails and
facilities that are “primarily used by HAND target populations.” Since trails and
maintenance are top priorities of this Master Plan, such a collaboration could
be very fruitful.

ImagineBloomington
ImagineBloomington is the update
process for the City of Bloomington’s
comprehensive plan

ImagineBloomington is the update process for the City of Bloomington’s
comprehensive plan. The plan was last updated in 2002. ImagineBloomington
establishes the long-range goals and policy objectives for the City and includes guidance for land use, zoning, housing, transportation, environmental
protections, sustainability, and community facilities. The full plan should be
completed in 2016.
ImagineBloomington has established a vision statement that will provide the
framework for developing the City’s goals, policies, and actions. The City
Council formally adopted this vision in January 2013. The vision is “Bloomington achieves excellence through collaboration, creativity, cultural vitality,
inclusion, and sustainability.” The City also developed “core principles” that
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Consolidated Plan, p. 90.

Bloomington Parks and Recreation Department

will guide future development. Pertinent principles include:
• Ensure that all land development activity makes a positive and lasting
community contribution.
• Embrace all of our neighborhoods as active and vital community assets
that need essential services, infrastructure, assistance, historic protection,
and access to small-scale mixed-use centers.
• Offer a wide variety of excellent educational opportunities for our residents at every stage of life.
• Deliver efficient, responsive, and forward-thinking opportunities for our
residents at every stage of life.
• Nurture a resilient, environmentally responsible community by judiciously
using our scarce resources, enhancing our natural assets, protecting our
historic resources, and supporting a vital local food system.
• Meet basic needs and ensure self-sufficiency for all residents.
• Encourage healthy lifestyles by providing high quality public places,
greenspaces, and parks and an array of recreational activities and
events.
• Fortify our progress toward improving public safety and civility.
The goals set forth in this Master Plan embrace these principles. As a result, the
Department can play a significant role in shaping the future of the City.

Mayoral Initiatives

Bloomington Mayor Mark Kruzan established four main initiatives “to make
Bloomington an even better place to live.”4 The initiatives are:
1. Community Commerce
2. Community Collaboration
3. Community Condition
4. Community Character
The Department has an impact on each of these initiatives, and this Master
Plan aligns well with these priorities. Goals in this Master Plan will promote
commerce, increase collaboration, improve community condition, and enhance Bloomington’s unique character.

Between 2005 and 2009, the City of Bloomington acquired 58 acres of the former switchyard for the old Monon Railroad. The Switchyard Park Master Plan
established goals and key designed elements that should be included in the
new park once it is completed. The goals for the park are:
ImagineBloomington is the update
process for the City of Bloomington’s
comprehensive plan

• A signature, destination park
• A work of art
• Safe and accessible for all
• Connected to the community
• Restored natural landscape
• Uniquely Bloomington
• An innovative, memorable, & dynamic park experience
Key design elements for the park include:
• A multipurpose Events Lawn for large civic gatherings, festivals, and informal play
• A linear “platform” of active park uses—skate park, spray plaza, playground, community gardens, a grand shelter, entry pavilion, court games,
public art—that are defined by the footprint of the former rail tracks
• Parking areas
• Nearly four miles of new multi-purpose trails to facilitate pedestrian and
bicycle connectivity, access, and use
• Restoration of the Clear Creek Corridor
• Utilization of best practice storm water management techniques
• Public art
Many of the elements in the Switchyard Park Master Plan align with the goals
set forth in this new Master Plan, including programming, trails, and sound
maintenance practices.

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Bloomington Parks and Recreation Department

Certified Technology Park Master Plan 2013

A Certified Technology Park (CTP) is a tool
that supports the attraction and growth of
high-technology business and promotes
technology transfer opportunities. Bloomington’s CTP Master Plan details the actions that
the City of Bloomington is taking to develop a
CTP just to the northwest of downtown Bloomington. Department assets, such as the B-Line
Trail, run through the land that is incorporated
into the CTP.

The current plans do not call for the Department to operate the greenspace that is
included in the CTP Master Plan. The greenspace will need to be considered
in terms of maintenance and use of the B-Line because new business and
increased connectivity could dramatically increase wear on the surface, necessitating more maintenance costs. In addition to fostering technology, the
CTP Master Plan calls for the area to feature pedestrian networks and open
spaces that connect the park with City Hall and Downtown and contribute
to an “emerald necklace” of open space along the B-Line Trail that connects
the Farmers’ Market to Butler Park.5

A parks and recreation master plan that adopts a narrow perspective, viewing
the Department as a silo in the context of a broader community-wide parks
and recreation system, will be ineffective in serving the City’s holistic interests.
The four distinct elements illustrated in Figure 1 and listed below should be fostered and balanced within the community-wide parks and recreation system.

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Certified Technology Park Master Plan, p. 4.

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Benefit #1: Individual Development
Parks and recreation provide for a well-balanced and healthy community. In
the resident survey, respondents pointed to physical and mental health benefits as the top reasons for using Department parks, trails, facilities, programs,
and events. Community health research conducted by the Eppley Institute
indicates that the City of Bloomingtonâ&#x20AC;&#x2122;s obesity rate is much lower than the
Indiana and national averages, and the Departmentâ&#x20AC;&#x2122;s offerings play a significant role in this finding. Continuing to provide the assets and services that it
offers the community will help keep Bloomington a healthy city.
Benefit #2: Community Building
A park and recreation system is one of the most effective tools for building
a sense of community and improving quality of life. Parks channel positive
community participation by getting diverse sets of people to work together
toward a shared vision. Volunteer participation and partnerships with established organizations are important parts of community building through the
parks and recreation system. Programs and team sports also facilitate social
interaction with others in the community.
Benefit #3: Economic Enhancement
Parks improve property values, attract people to live and work in the community, and persuade retirees to stay in the area. Economic revitalization of
neighborhoods and town centers is enhanced by investment in parks that in
turn attract private investment capital. Parks and recreation facilities and programs are not only enjoyed by residents but also attract visitors and contribute to the local tourism markets.
Benefit #4: Environmental Stewardship
Natural areas retain and filter storm water; serve as buffers between incompatible land uses; lend definition to neighborhood areas; provide links
between residential areas, parks, and schools; and protect wildlife and fish
habitat while providing recreation opportunities close to home.

Urban park systems generally provide a wide array of diverse settings for
many uses, and this is certainly the case for Bloomington. A park classification
system, based upon industry best practices, community engagement, and
benchmark research, has been developed for the Bloomington Parks and
Recreation Department to measure the development of an equitable system
of parks for the city.
Park Classification
Urban/Mini-Parks
Neighborhood Parks
Community Parks/Sports Parks/Golf Course
Nature Preserves
Multi-Use Trails
Dog Parks

Bloomingtonâ&#x20AC;&#x2122;s park system includes three urban parks, also known as miniparks. These parks serve residents living or working within a Âź-mile walking
distance. Urban Parks are the smallest park classification and provide surrounding residences, offices, and commercial buildings with open space,
which research has shown promotes health and wellness. They serve limited,
typically individual daily needs and occasional group needs.

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Neighborhood Park: Crestmont Park

Although there is some programming at these parks, such as the concerts
at Peopleâ&#x20AC;&#x2122;s Park, the majority of use is unscheduled. Urban Parks provide
benches and limited shelter for people to enjoy a meal. Urban Parks can also
provide landscape as a buffer to surrounding roads and land use; passive recreational areas for senior citizens and others that include walkways, benches,
gardens, picnic tables, quiet areas, and outdoor picnic areas with small shelters; and a small parking lot.

Neighborhood Parks

Neighborhood parks are foundational for community development because
they can provide focal points for neighborhood identities, gathering places
for friends and family, opportunities for informal play, and natural settings for
quiet reflection close to home. These parks typically range in size between five
and 25 acres and are usually located within walking distance of neighborhood residences (within a half-mile radius).
Neighborhood parks provide a wide variety of recreational opportunities within residential areas. They typically include space and facilities for the active
recreational pursuits of children, teenagers, and young adults, as well as quiet
landscaped areas that act as buffers to residential settings and offer space in
which older residents can relax with their families.
The most common types of spaces and facilities that are designed within neighborhood parks include the following: shelters, picnic tables, grills, playground equipment, ball diamonds, tennis courts, and basketball courts. Neighborhood parks
also generally include an open playing field for informal activities such as pick-up
sports games and practices for baseball, soccer, and other league games.
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Bloomington Parks and Recreation Department

Community Parks

Community Park: Bryan Park

Community parks are larger than neighborhood parks and generally include
a mix of active and passive park areas and active recreation facilities. Community parks provide space for those recreational activities that serve a wider
population than the surrounding neighborhood and are intended to serve
several neighborhoods within a larger geographic area of the city.
These parks typically range from 20 to 100 acres in size and provide a balance
of natural environments and developed facilities. Physical features commonly
found in community parks include multiple sports fields for baseball, softball,
soccer, football, and other related sports that are scheduled for leagues and
tournaments. They can also provide tennis courts and multi-purpose courts for
basketball, volleyball, and handball. Other areas include playgrounds, picnic
shelters, tables, paths, and off-street parking lots. In some communities, this
classification has been retitled as â&#x20AC;&#x153;community parks and open spaceâ&#x20AC;? to better fit the type of land use in the park system.
Although community parks are larger in size and serve a broader purpose than
neighborhood parks, they can meet the need for close-to-home parks much
like neighborhood parks do. The focus is on meeting the recreation needs of
several neighborhoods or a large section of the community, as well as preserving unique landscapes or natural use areas. They allow for group activities and
offer other recreational opportunities that are not feasible, and may not be
desirable, at the neighborhood level. The primary purpose of a community park
is to provide opportunities for social contact among a wide variety of members
of different neighborhoods and ethnic and socio-economic backgrounds.
These parks meet the specialized needs of a broader community, have higher
technical design requirements, provide a sense of community, and increase
economic development potential. Like neighborhood parks, they should offer a
balance between active and passive recreation activities. For this Master Plan,
Sports Parks are captured under this classification.
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Nature Preserves: Griffy Lake

Nature Preserves

The Bloomington Parks and Recreation Department manages four nature preserves: Brown’s Woods, Griffy Lake, Latimer Woods, and Leonard Springs. These
locations make up the bulk of the Department’s land acreage. Bloomington’s
nature preserves comprise 63.4% of the Department’s total acreage, leaving
just 36.6% of acreage to the remaining land designations. Based on feedback
from Bloomington residents, it is clear that people value the recreational opportunities that these preserves provide and utilize them at a high rate.

Cemeteries

The Department oversees Rose Hill Cemetery and White Oak Cemetery for
Bloomington. Cemeteries are not used for many planned programs and
events but do feature some informal use for running and walking and can
serve as points of historical interest. The Department manages these two cemeteries for the city because they have the staff and knowledge to properly
maintain the grounds.
Cemeteries: Rose Hill

Multi-Use Trails

Multi-Use Trails that are managed by the Department provide close-to-home
recreation and non-motorized links between residential areas, parks, downtown, commercial areas, and schools. They also foster improved public health
and a sense of community, increase economic development potential, and
protect wildlife migration corridors and habitat. Currently, the Department
provides paved and unpaved trails for a total of 35.39 miles of paths.

Trails: Clear Creek Trail

As issues around alternative transportation, public health, and economic vitality continue to affect planning decisions, there will be increased discussion
about how the physical connectivity provided by urban trails can help meet
community objectives. Just as proximity of homes to neighborhood and community parks has emerged as a priority in recent years, so too has the proximity of homes to trails.

Undeveloped Parkland

The Parks and Recreation Department currently has two undeveloped properties: Switchyard Park and Goat Farm.
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Bloomington Parks and Recreation Department

Recreation Facilities

The Bloomington Parks and Recreation Department operates a wide range
of facilities from outdoor pools to playgrounds. These facilities support both
general informal use by the public as well as specialized or scheduled use for
athletic competitions, recreation programs, or other events. Recreation facilities have highly specialized maintenance and management requirements
and are subject to different standards than urban parkland.
Specialized facilities operated by the Department include Banneker Community Center, Twin Lakes Recreation Center, Twin Lakes Sports Park, Winslow
Sports Park, Cascades Golf Course, Frank Southern Ice Arena, and a dog
park. While some of these facilities can be used for different activities, many
are single- or narrow-purpose. Active recreation facilities are typically more
costly to develop and operate over time. Community decisions about the
provision of these facilities generally take into consideration the extent of the
user base, lifecycle management costs, and existence of similar facilities in or
near the community.
Passive or community recreation facilities include trails, playgrounds, picnic
shelters, community gardens, and some open rectangular fields for use that
is unstructured and informal. These facilities are found in the parks that are located throughout the City, and they play a significant role in giving parks their
character. As a result of their broader use, a wider segment of the general
public tends to access them. While passive/community recreation facilities
are usually less expensive to develop and maintain, they also have notable
lifecycle costs associated with their management.

The Bloomington Parks and Recreation Department offers a variety of recreation programs and services to Bloomington residents. In the needs assessment (Chapter 5), the Departmentâ&#x20AC;&#x2122;s programs will be analyzed for both
specific and overarching issues that constitute ways in which the Department
can enhance its provision of services to the public and make the most effective use of available resources. Programs and services were examined
by using national trend information provided by the Sports & Fitness Industry
Associationâ&#x20AC;&#x2122;s 2015 Sports, Fitness, and Leisure Activities Topline Participation
Report, benchmark data, and information gleaned throughout the civic engagement process.
In general, a major priority for the Department is to make informed management decisions based on budgeting and financing metrics. In particular,
policy decisions regarding specific recreation programs are often made with
consideration of the extent to which the cost to deliver a program can be recovered. However, decisions are increasingly informed by another factor: the
degree of social or public good that the program provides to the community.
Social good programs differ from private good programs in that the latter provide benefits that are generally exclusive to the participant, while the former
enhance the health, safety, and livability of the community.

The Bloomington Parks and Recreation Department is not the only provider in
the overall system of park and recreation services in the community. Organizations from the public, private, and nonprofit sectors all play a role in offering
programs and/or facilities that relate to parks and recreation.

Indiana University

Indiana University is the largest employer in Bloomington and boasts a student
population of over 40,000. As part of its large campus, IU offers a number of
recreational facilities and programs that are directed to its students, staff, and
faculty. Administered by Recreational Sports, the organization’s mission is to
“connect, inform, and inspire people to lead active, healthy lifestyles.” Recreational Sports administers nine facilities on the IU campus, including the Student
Recreational Sports Center, Wildermuth Intramural Center, Counsilman/Billingsley Aquatic Center, Royer Pool, Outdoor Pool, Tennis Center, Woodlawn Fields,
Outdoor Tennis Courts, and the Recreational Sports Field Complex.

Monroe County Parks and Recreation Department

Monroe County Parks and Recreation
Department

A separate entity from the Bloomington Parks and Recreation Department,
the county department “exists to provide quality parks, recreation, and
educational programs, promote appreciation of environmental and cultural
resources, and preserve green space.”6 The Monroe County Parks and Recreation Department administers Karst Farm Park, Flatwoods Park, Will Detmer
Park, and Jackson Creek Park.
The most used park administered by the county is Karst Farm Park. It features
soccer fields used by Cutters Soccer Club for youth soccer and adult pickup games and leagues. The Bloomington Parks and Recreation Department
does not offer soccer since the county fields and associated organizations are
well established. Indeed, Karst boasts 12 rectangular fields, more than the 8
Monroe County Parks and Recreation Department,
http://www.co.monroe.in.us/tsd/community/parksrecreation.aspx.

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Bloomington Parks and Recreation Department

offered by Bloomington Parks and Recreation Department. Even though the
Department has a low level of service for rectangular fields, it is not an urgent
need to build more since 12 fields are available at Karst Farm Park on the west
side of the City. Other offerings by the county include a disc golf course, shelters, nature programs, a dog park, and a splash pad.

YMCA7

Founded in 1891, the YMCA of Monroe County was established as a Christian
organization to serve Indiana University students. The organization moved
off campus in 1960 and began focusing on serving the entire Bloomington
community. The Monroe County YMCA operates three facilities: Northwest Y
Branch, Southeast Y Branch, and the Gymnastics Center. Combined, these
facilities offer indoor pools, hot tubs, a wellness center, childcare, group
exercise, gymnastics, an indoor track, and racquetball courts. Programs are
available to youth and adults on a year-round basis.

Schools: Monroe County Community School Corporation and
Richland Bean-Blossom Community School Corporation

The public school systems in Monroe County administer many sports fields and
playgrounds designed for students from kindergarten through 12th grade. Programs include officially sanctioned Indiana High School Athletic Association
sports like football, baseball, softball, and soccer. On occasion, the MCCSC
utilizes facilities operated by the Department for its programs. For example,
the Jackson Creek Middle School uses the football fields at Olcott Park for
practice and games. Additionally, children enrolled in sports at their schools
can participate in travelling teams that use facilities administered by the Department.

Private Health Clubs and Gyms

Bloomington features a variety of private health clubs and gyms where
people can pay annual or monthly fees in order to use the facilities. Examples
of these facilities include Anytime Fitness, Cardinal Fitness, Curves, Planet Fitness, and Iron Pit Gym. Most of the facilities are focused on providing exercise
equipment, weights, and personal training and do not offer sport or recreation programs.

Youth Outreach Groups: Boys and Girls Club, Girls Inc.

The Boys and Girls Clubs of Bloomington8 is an organization that serves children aged 6-18 with after-school programs and events during school holidays
and breaks. This organization has three facilities in Monroe County. Two of
these facilities, Lincoln Street and Crestmont, are located in Bloomington. Programs include art, cooking, archery, and camps.
Girls Inc. strives â&#x20AC;&#x153;to meet the needs of the girls in our community through
exciting, research-driven programming, sound mentoring, and our supportive, all-girl environment.â&#x20AC;?9 Girls Inc. operates a facility on W. Eighth Street that
features a gym. This organization offers after-school programs, sports, and day
camps to members that make use of this facility.
Monroe County YMCA, http://www.monroecountyymca.org/about.html.
Boys and Girls Clubs of Bloomington, http://bgcbloomington.com/.
9
Girls Inc., http://www.girlsinc-monroe.org/pages/about.
7
8

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Houses of Worship

A wide variety of religions are represented in Bloomington, and many of the
associated churches, mosques, synagogues, and other houses of worship feature recreation facilities. Some are as simple as rooms for crafts, while others
include rectangular fields, playgrounds, and other offerings.

Other

There are many independent clubs that organize sporting events utilizing Department facilities and those of other recreation providers throughout Bloomington and Monroe County. Some examples include:
• Bloomington Soccer: This organization organizes indoor soccer leagues
that utilize the Department’s Twin Lakes Recreation Center. It offers a
variety of leagues, camps, and instruction.
• Bloomington Junior League Baseball: Geared toward children aged
5-12, BJLBA offers organized baseball leagues based on age. It also hosts
various tournaments and uses the Department’s Winslow Sports Park as its
main fields.
• Bloomington Adult Sports Club: Created for adults aged 21 and older,
this group organizes kickball leagues in the spring, summer, and fall. The
club utilizes the rectangular fields at the Department’s Olcott Park to host
its games.
• Various organizations utilize the Department’s Frank Southern Ice Arena.
Bloomington Blades, Bloomington Figure Staking Club, and IU Hockey all
use the facility for their programs.

Organizational Structure

An overarching goal of the Master Plan is to investigate the Department’s role
as a provider of park and recreation services in the community and to make
recommendations about the structure of the Department to allow for greater
effectiveness.
The Department is led by an Administrator who oversees four main divisions:
Administration and Community Relations, Operations and Development, Recreation Services, and Sports Services.

Administration and Community Relations

The Administration and Community Relations division carries out two main
responsibilities: office management and relations with the community. In the
Department’s organizational chart, the Community Relations Manager and
Office Manager oversee these tasks. Activities included in this division include:
• Clerical Support
• Financial Support
• Marketing
• Promotions
• Sponsorships
• Volunteer Organization

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Bloomington Parks and Recreation Department

Operations and Development

The Operations and Development division is responsible for maintenance,
sanitation, capital improvements, planning, construction, and development
of all parks, nature preserves, facilities, and trails. It also oversees landscaping
in Bloomington’s medians, the City’s urban forestry efforts, and shelter rentals
at Department properties. This division administers and maintains Rose Hill and
White Oak cemeteries.

Recreation Services

Recreation Services provides programs, events, and services for the Department. These include Community Events that feature an eclectic mix of cultural and outdoor activities and year-round events that provide enjoyment,
education, and a sense of community. Examples of these offerings include:
• After-School Programs
• Community Gardens
• Drool in the Pool
• Farmers’ Market
• Fourth of July Parade
• Kid City camps
• Preschool
• Rhino’s all-ages events
• Special Olympics
• Senior Expo
• Youth Break Days

Results from the community survey indicate high satisfaction rates for Bloomington’s programs, events, parks, trails, and facilities. There has been no indication that the Department’s current structure is hindering its ability to serve
Bloomington. As a result, a reorganization or full organizational study is not
recommended at this time.

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Bloomington Parks and Recreation Department

CHAPTER 4

COMMUNITY TRENDS

Examining the key issues and evolving trends of the community provides a
critical backdrop to other research findings and helps compose an accurate,
comprehensive depiction of community needs. Exploring the key issues and
trends relevant to parks and recreation in Bloomington will set the stage for
the meaningful strategic recommendations of this master plan.

The Bloomington Population

Bloomington has grown at a rapid rate since the 1950s. Between 1960 and
2010, Bloomington has added 9,809.6 people on average to its population
every decade. The last decade (2000-2010) saw a population increase of
11,114 people, second only to the increase of 11,905 from 1960-1970. The
City’s population increase is a result of many factors, including increasing enrollment at Indiana University and the continuous growth that the school has
experienced in terms of land and staffing during that time.

City of Bloomington Population 1950-201010 11

Bloomington Development Patterns

Indiana University Health-Bloomington Hospital

Development patterns over the next five years are likely to be driven by the
relocation of Indiana University Health-Bloomington Hospital. This organization,
in partnership with Indiana University, will be moving its medical complex to
the current site of the Indiana University Golf Course Driving Range near the
corner of 10th Street and the State Road 45/46 Bypass. This move will leave
the hospital’s current location near downtown open for redevelopment ideas
and will transform the east side of the City as the new hospital is developed.
With such a large employer and a commitment from Indiana University to turn
the hospital into a teaching facility, there is potential for the east side to experience new growth.
STATs Indiana: Indiana’s Public Data Utility,
http://www.stats.indiana.edu/population/PopTotals/historic_counts_cities.asp.
11
Indiana University: University Institutional Research and Reporting, Historical Enrollments,
https://www.iu.edu/~uirr/reports/standard/enrollment/historical.php
10

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23

I-69 Completion

State Road 37 will be converted to Interstate 69 during the course of this master plan. Development of this road into an interstate could increase development on the west side of the City. Much of the space included in this development falls under existing service areas. The next Department master plan
will need to examine how this development impacts Bloomington’s population distribution and determine whether additional parkland will be needed.

Certified Technology Park

This area, located just northwest of downtown, will be transformed into a
redeveloped technology park that will promote business growth and nonstudent housing. Butler Park and the B-Line Trail are current Department assets
that will serve this area, and additional greenspace will be added but not
administered by the Department. The Department will need to study how
this development impacts maintenance needs for its current facilities due to
increased use.

New Development along the B-Line Trail and Future Switchyard Park
New houses and businesses are being built south of the downtown square.
These developments will reap the benefits of the trail and the park in terms
of easy access to recreation and the promotion of healthy lifestyles by use of
walking trails and the amenities that will be featured in the Switchyard Park.
Topic

Indiana

Health Behaviors

Monroe
County
3/92

Adult
smoking

23%

18%

Adult obesity

31%

23%

Food
environment
index

7.2

6.6

Physical
inactivity

27%

19%

Access to
exercise
opportunities

75%

88%

Social & Economic
Factors

23/92

Wellness

According to the Indiana Health Rankings, Monroe County ranks 14th out of 92
counties for health outcomes related to Quality of Life. Health-related quality
of life is a “multi-dimensional concept that includes domains related to physical, mental, emotional and social functioning. It goes beyond direct measures of population health, life expectancy and causes of death, and focuses
on the impact health status has on quality of life.”12 The CDC has defined
health-related quality of life as “an individual’s or group’s perceived physical
and mental health over time.”12
In terms of health behaviors, Monroe County is one of the healthiest counties in
the state. Metrics for adult obesity, smoking, food environment, physical inactivity, and access to exercise are all better than Indiana averages. These are all
areas in which the Department can have and has had a significant impact.
The facilities, programs, and events provided by the Department are used to
improve and maintain healthy lifestyles. Health and wellness have become a
nationwide concern, and as a result, park and recreation departments are being identified as part of the solution. Programs and facilities that address these
issues thus have priority over others. As the survey for this Master Plan demonstrates, the community understands the important role that the Department has
in promoting community health, and ensuring that the Department continues
and expands this role is a critical component of this plan’s goals. Ensuring that
Monroe County, and by extension, Bloomington, remains a healthy place to
live is intertwined with the Department’s success for years to come.
Office of Disease Prevention and Health Promotion, Healthy People 2020,
http://www.healthypeople.gov/2020/about/foundation-health-measures/Health-Related-Quality-of-Life-andWell-Being.
13
Ibid.
12

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Bloomington Parks and Recreation Department

Recreation Trends

The Bloomington Parks and Recreation Department administers many parks,
trails, and facilities for which it is well known. This includes Twin Lakes Recreation Center, the B-Line Trail, and Bryan Park. These parks, trails, and facilities
provide community members with cultural programs and physical fitness opportunities. Among the most popular programs and events that the Department offers are the Farmers’ Market, community events, and organized youth
sports leagues and programs.
According to the 2015 Sports and Fitness Industry Association (formerly the
Sporting Goods Manufacturers Association) report, inactivity in the United
States has taken a sharp turn upwards to 28.3% overall.14 Bloomington’s inactivity rate is far lower than this national average, which can be attributed to
active lifestyles that are supported by the facilities, programs, and events provided by the Department and other recreation providers in the community.

National Recreation and Park Association’s areas of focus.

On a national level, participation rates for individual sports have seen a decline from 2009 through 2014. Meanwhile, participation in team and fitness
sports has been relatively steady. According to the Sports & Fitness Industry
Association, people born after the year 2000 make up the age group with the
highest participation rate in team sports, while Gen X-ers and Millennials lead
participation in fitness sports.
In Bloomington, these trends are reversed, with individual activities on the
rise and team sports declining. Survey respondents indicated that assets that
facilitate individual fitness, such as trails, are the most used in Bloomington.
What also makes Bloomington different from much of the national data is
the interest in and value placed on community programs and events like
the Farmers’ Market, concerts, and community events. These programs and
events are the most used and most valued in the community and support
Bloomington’s unique qualities while at the same time they promote physical
health via healthy food and mental wellbeing by creating opportunities for
social interaction in enjoyable environments.

NEEDS ASSESSMENT
Accurately assessing needs is one of the fundamental parts of planning.
Informed by data about the community as outlined in the previous sections
of this document, timely and appropriate decisions need to be made about
how to meet the Bloomington community’s demand with a supply of the right
mix of parks, trails, facilities, programs, and events. Demand is derived from
multiple sources: community engagement, research on trends, findings from
benchmark communities, and related research. Supply is informed by policy
guidance, organizational structure, available resources, and other factors. As
such, conducting a needs assessment requires a synthesis of a wide array of
inputs that ultimately yield valuable information about how to establish Level
of Service (LOS) standards.

Needs Assessment Methods and Findings

The needs assessment conducted for the Bloomington Parks and Recreation
Department’s master plan utilized a triangulation approach to derive findings that inform service levels for the department. One source was the community engagement activities discussed earlier in Chapter 1, which included
stakeholder meetings, the community survey, and three public open house
meetings. Another source was the research drawn from topical reports developed as part of the planning process. Benchmarking was also used to assist
Bloomington in comparing its park and recreation facilities, programs, and
administration to cities determined to be desirable comparisons. Five benchmark communities were selected after input from staff, stakeholders, and the
planning team. These communities are Asheville, NC; Bend, OR; Iowa City, IA;
South Bend, IN; and Boulder, CO.

Findings on Recreation Demand
The Needs Assessment should be
validated by Department staff on an
annual basis.
This can be done by reviewing local
participation data, national park and
recreation trends, data from future
community surveys, and program
evaluation reports.

• Maintenance of current parks and facilities was rated as one of the
highest areas in survey respondents’ ranking of priorities for the Department over the next 5 years. Respondents indicated satisfaction with the
Department’s current efforts and supported large allocations of funding
for maintenance moving forward. With the addition of new property, like
Switchyard Park, sufficient funding is needed in order to keep this new
park in excellent condition while also maintaining all of the Department’s
existing offerings.
• Trail development is clearly a priority in Bloomington. Development of
trails would connect more citizens to parks and promote healthy lifestyles
through physical activity.
• Community Park/Sport Park development on the east side of the city
is warranted. GIS analysis identified service area gaps for Department
assets on this side of town. There is a large residential population on the
east side of Bloomington, and coupled with the future development

26

Bloomington Parks and Recreation Department

of Indiana University Health-Bloomington Hospital, the development of
Community Parks/Sports Parks would be appropriate to serve this area of
the community.
â&#x20AC;˘ Programs and Events are valued for the positive impact they have on
health. The Farmersâ&#x20AC;&#x2122; Market, concerts, and youth programming were the
most popular and most valuable programs and events that respondents
identified.

Level of Service Analysis

Needs are expressed through a Level of Service (LOS) analysis that considers all findings. Numeric LOS metrics are most commonly used when analyzing parkland and recreation facilities so as to express acreage or availability
in per capita terms. However, effective assessments of recreation programs
often rely more heavily on other factors, such as specific programming trends.

Parkland

The analysis and projections of future parkland needs are based upon industry
and community standards, as well as other needs assessment research. The
following table provides an overview of the LOS for the Bloomington Parks
and Recreation Department.
Current
Acres

Current
LOS15

2020 LOS16

National Recreation
and Park Association
Standards

Mini-Parks/Urban Parks

6.81

0.081

0.079

0.25-0.50

Neighborhood Parks

68.96

0.827

0.80

1.00-2.00

Community/Sport Parks &
Golf Course

649.12

7.79

7.53

5.0-8.0

Regional Parks

0.00

0.00

0.00

5.0-10.0

Multi-Use Trails

148.02

1.77

1.71

N/A

Nature Preserves

Park Classification

1302.48

15.63

15.12

N/A

Dog Parks

18.5

0.222

0.215

N/A

Cemeteries

29.99

0.36

0.34

N/A

2223.88

26.69

25.81

11.25-20.5

Undeveloped Land Types

34.02

N/A

N/A

N/A

Facility Acreage Not
Counted in Parks

15.42

0.18

0.17

N/A

2,273.32

27.28

26.38

11.25-20.5

Developed Parkland
Subtotal

Total

Total parkland includes all classifications, both current acreage and those
planned for development.

Unless otherwise specified, LOS is presented as per 1,000 residents and based upon a population of 83,322.
This population estimate is found in Population Estimates for Indianaâ&#x20AC;&#x2122;s Incorporated Places, 2010-2014, Stats
Indiana, Indiana Business Research Center, Indiana University, May 21, 2015.
16
Based on a population of 86,154 people. Population estimate derived from Indiana Business Research Center
growth estimates from 2010-2014. A 3.4% estimated population growth rate from the 2010-2014 time period was
applied to 2016-2020.
15

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27

Parkland Level of Service
The majority of the Departmentâ&#x20AC;&#x2122;s parkland is comprised of Nature Preserves
and Community Parks. These park types lead to a total level of service that
exceeds overall service levels. Urban Parks and Community Parks fall below
standards set by NRPA. Urban Parks are found in the center of the City while
neighborhood parks are evenly distributed throughout the City.â&#x20AC;&#x192;

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Bloomington Parks and Recreation Department

Urban/Mini-Parks
Bloomington’s park system includes three urban parks, also known as miniparks. These parks serve residents living or working within a ¼-mile walking
distance.
Urban Park Acreage

Current LOS = Current Acreage / Current Population in thousands
Projected LOS = Current Acreage / Projected Population in thousands
19
Beyond Current Acreage
17
18

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29

Bloomington’s three urban parks are all located downtown between Indiana
University to the east and IU Health Bloomington Hospital on the west. According to the public survey, two of the three (Seminary and Peoples) are rated as
the parks with the worst conditions in Bloomington. According to comments in
the survey, people also view Seminary and Peoples as the least safe parks in
Bloomington. Comments in the survey and from stakeholder meetings indicate that some of this uneasiness is attributed to frequent use of these parks
by the city’s homeless population. In the spring of 2015, Bloomington businesses and community members held public meetings regarding homeless issues
in the downtown area, including Peoples Park.
Seminary Park is also difficult to access since there is not an obvious parking
lot for people to utilize. Seminary Park is located between the busy thoroughfares of College Avenue and Walnut Street. People either park west of College in the Kroger parking lot or at the adjoining post office to use the space.
It is also far enough from the B-Line trail for it to be out of mind for potential
users. Although the acreage for Urban Parks is below NRPA standards, based
on community feedback, Urban Parks are not at the forefront of people’s

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Bloomington Parks and Recreation Department

minds when it comes to park development. Bloomington and Monroe County
residents are fairly active, and Urban Parks facilitate more passive than active uses. The addition of an Urban Park would also necessitate acquisition of
more land, which is not readily available where Bloomington has traditionally placed these parks. Development, therefore, could be focused on other
parkland types that the public values and that facilitate the active lifestyle
that Bloomington residents value.
It is important to note that some communities have eliminated urban parks as
a separate parkland designation in favor of a more broad use of the neighborhood park designation. Further, some communities have determined that
the cost of acquiring, developing, and maintaining urban parks is not an effective use of limited resources. This may be the case for Bloomington.
Neighborhood Parks
Neighborhood parks are foundational for community development because
they can provide focal points for neighborhood identities, gathering places
for friends and family, opportunities for informal play, and natural settings for
quiet reflection close to home.

Characteristics of Traditional Neighborhood Parks
1. Typically five acres or larger although some communities include parks as
small as 1 acre, or even smaller (eliminating urban/mini-parks as a classification)
2. Typically serve residents living within easy walking and biking distance
(half a mile or a 10-minute walk)
3. Offer non-programmed outdoor space including seating areas, places
to picnic and play catch, childrenâ&#x20AC;&#x2122;s play areas, and landscaping that
enhances and preserves the siteâ&#x20AC;&#x2122;s natural character

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31

The Department currently provides a total of 68.96 acres of neighborhood
parkland for an LOS of .827 acres per 1,000 residents. If no further acreage beyond the undeveloped neighborhood parkland is added to the Department’s
system, the projected growth in population will yield an LOS of 0.8 acres per
thousand residents in the year 2020. To maintain the current LOS, an additional 3.24 acres (for a total of 72.2 acres) of neighborhood parkland would need
to be acquired by the year 2020. Bloomington’s current and projected LOS
fall below NRPA’s LOS standards. An additional 17.14 acres would need to
be added to the Department’s portfolio in order to meet the NRPA standard.
Based on usage and reported community needs, meeting this particular standard is not a priority.
Table 3: Neighborhood Park LOS Analysis
Current acreage

Access to neighborhood parks is important according to the survey conducted for this study. Small neighborhood parks were reported as the fourth most
used facility types by respondents and were rated as the fifth most important
facility type to have in Bloomington. Only walking/biking trails, large community parks, and greenspace/natural areas were listed as more used.

Current LOS = Current Acreage / Current Population in thousands
Projected LOS = Current Acreage / Projected Population in thousands
22
Beyond Current Acreage
20
21

32

Bloomington Parks and Recreation Department

Neighborhood Park Use
Park

% of population who
used park in the last year

Sherwood Oaks

23.3%

Rev. Butler

18.5%

Building & Trades

16.1%

Southeast

14.5%

Park Ridge East

11.9%

Park Ridge

8.6%

Schmalz Farm

6.0%

Highland Village

5.5%

Crestmont

5.5%

Broadview

3.5%

Despite this information, additions to the Departmentâ&#x20AC;&#x2122;s Neighborhood Parks
are not a top priority. Neighborhood Parks are relatively evenly distributed
throughout the community. They are the one classification that provides
service to the far east side, and many of the gaps shown on this Neighborhood Park map are met by Community Parks, which often serve a dual role as
Neighborhood Parks.

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Community Parks
Community parks are larger than neighborhood parks and generally include
a mix of active and passive park areas and active recreation facilities. Community parks provide space for those recreational activities that serve a wider
population than the surrounding neighborhood and are intended to serve
several neighborhoods within a larger geographic area of the city.

34

Bloomington Parks and Recreation Department

The Bloomington Parks and Recreation Department currently provides 649.12
acres of community/sports/golf parkland, or an LOS of 7.79. NRPA standards
set the lower range of Community Park LOS at 5.0. Even if Bloomington did not
add acreage for its Community Parks in the next five years, it would still meet
NRPA LOS recommendations.
Community Park LOS Analysis
Current acreage

649.12

Current Bloomington population

83,322

Current LOS (per thousand)

7.79

National Park and Recreation Association Standard

5.0-8.0

Projected 2020 Bloomington population

86,154

Projected LOS in 2020
Additional acreage required by 2020 to maintain current LOS

7.53
(+22.88)

Total acreage required by 2020 to maintain current LOS

672.00

Additional acreage required by 2020 to meet NRPA Standard

(+0.00)

Total acreage required by 2020 to meet NRPA Standard

649.12

Findings from the survey and community engagement sessions indicate that
community parks are used frequently in Bloomington and are considered to
be one of the most important facility types in the city. 72.3% of survey respondents indicated that they had used a community park in the last year and
another 66.6% of respondents indicated that community parks were very important to have in Bloomington, ranking only behind walking and biking trails
as this most used and most important types of facilities.

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35

Community Park Use
% of population who used park
in the last year

Park
Bryan

79.3%

Cascades (Lower and Upper)

61.0%

Olcott

33.6%

Winslow Sports Park

26.4%

Winslow Woods

21.7%

RCA

18.5%

Twin Lakes Sports Park

8.2%

Cascades-Upper Skate Park

5.2%

Wapehani Mountain Bike Sports Park

3.0%

Broadview

3.5%

When taken individually, Bryan Park and Cascades Park are the most used
parks in Bloomington. According to the survey, 79.3% of users had visited
Bryan Park in the last year and 61% had visited Cascades Park in the last year.
These two parks have various features that make them popular. Cascades,
both Upper and Lower, feature specialized sport facilities such as the skate
park, ballfields, golf course, and trails. Bryan Park is located centrally in town
and features Bryan Park Pool, multiple playgrounds, a walking path, open
fields, and shelters. Programs at these parks also draw people to use them.
Bloomington is also working on a new community park, Switchyard Park,
which will be located along the B-Line Trail in the center of the city. With the
completion of this park, focus on maintenance would be key in keeping these
parks at their high levels of use. With LOS met for the city, pursuit of more community parks would make sense only if it would fill in gaps for service areas.
Bloomingtonâ&#x20AC;&#x2122;s east side, which does not feature a community park within a
service area radius, would benefit from a potential new park. Currently, residents on this side of town must travel to the north, central, and south sides of
the city to access a community park. For those with limited transportation options, this can mean long bus rides or dangerous bike rides along routes that
are not especially bike friendly.

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Bloomington Parks and Recreation Department

The current placement of the Sports Parks in Bloomington presents the same
coverage gaps as the standard community parks. While the north, south,
west, and central sections of Bloomington feature adequate coverage, the
east side of the City does not have a sports park that serves the area. Although creating another community park was not identified by residents as a
pressing concern, if land on this side of town were to become available, the
Department would need to consider purchase in case future plans call for
community parks.

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37

Nature Preserves
The Bloomington Parks and Recreation Department manages four nature preserves: Brown’s Woods, Griffy Lake, Latimer Woods, and Leonard Springs. These
locations make up the bulk of the Department’s land acreage. Bloomington’s
nature preserves comprise 63.4% of the Department’s total acreage, leaving
just 36.6% of acreage to the remaining land designations. Based on feedback
from Bloomington residents, it is clear that people value the recreational opportunities that these preserves provide and utilize them at a high rate.
Griffy Lake Nature Preserve is one of the more popular properties administered by the Department. According to the survey, 52.4% of respondents had
used the property in the past year, making it the third most popular tract of
land after Bryan Park and Cascades. Leonard Springs is the fifth most visited
location administered by the Department with 34.1% of respondents to the
sample survey indicating that they had visited the preserve in the last year.

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Bloomington Parks and Recreation Department

These impressive usage numbers are not surprising as Bloomington residents
have ranked having greenspace and natural areas the third most important facility type to have in the city. The greenspace and natural areas were
also noted by residents as places that contribute significantly to their health.
With 51% of residents identifying these areas as contributing the most to their
health, these spaces ranked just behind walking and biking trails in terms of
contribution to overall health. The coverage in terms of service areas is good
except for a small segment on the south side of the city. Although expansion
of nature preserves is not noted as a top priority for the public, this would be
the one area that may benefit the most from expansion. The undeveloped
Goat Farm property could fulfill this requirement if need be. The land is already under the administration of the Department and could be converted
to a nature preserve.
With that noted, given the large coverage area that the preserves provide
to Bloomington and the high use levels of Griffy Lake and Leonard Springs in
particular, expansion of these preserves is not necessarily a priority.

Master Plan Project

39

Cemeteries

The Department oversees Rose Hill Cemetery and White Oak Cemetery for
Bloomington. The cemeteries combine for 29.99 acres. There is no set national standard for cemetery acres managed by parks departments. Though
cemeteries are not used for extensive programming, they do receive some
passive use in walking, jogging, and as points of historical interest. The Department manages these two cemeteries for the city mainly because they
have the staff and knowledge to properly maintain the grounds. White Oak
Cemetery is rarely used: only 3% of residents have visited the location in the
last year. Rose Hill Cemetery is much more popular, with 21.7% of residents
indicating that they had visited it in the past year, most likely due to the historical nature of the property. Though the city will probably continue to have the
Department maintain these locations, there is no need for the Department
to expand is cemetery management to other locations based on residential
feedback and budgetary considerations. Adding another property would
cost labor, time, and use of equipment while providing minimal recreational
opportunities for the public.

40

Bloomington Parks and Recreation Department

Rose Hill Cemetery
Rose Hill Cemetery (26.29 acres) contains the burial sites of many people who
were influential in Bloomington and Indiana University history. This includes
one of IU’s first trustees, Dr. David Maxwell; IU’s first president, Andrew Wylie;
noted researcher Alfred Kinsey; and renowned composer and musician Hoagland (Hoagy) Carmichael. Rose Hill came under the jurisdiction of the City
of Bloomington in 1868 when the land was transferred from Monroe County
Commissioners.23 The Department cares for the site by providing landscaping
and maintenance of the site.
White Oak Cemetery
This cemetery began as the United Presbyterian Cemetery. The City of Bloomington purchased it in 1914 and renamed it White Oak in 1983.24 The Department cares for the site by providing landscaping and maintenance of the site.

Multi-Use Trails

Trails and connectors that are managed by the Department provide closeto-home recreation and non-motorized links for the community, and they
increase economic development potential.
As issues around alternative transportation, public health, and economic
vitality continue to affect planning decisions, there will be increased discussion about how the physical connectivity provided by urban trails can help
meet community objectives. Just as proximity of homes to neighborhood and
community parks has emerged as a priority in recent years, so too has the
proximity of homes to trails. In September 2015, the Surgeon General of the
United States issued Step it Up, a report designed to encourage walking and
wheelchair rolling in communities. The Surgeon General notes how important
active lifestyles can be in the prevention of chronic diseases. “Regular physical activity can reduce the burden of chronic diseases, such as heart disease,
diabetes, and some cancers, and can prevent early death. Physical activity
can also help people with chronic diseases manage their conditions.” The
report continues, “Physical activity has other health benefits too. It can help
manage weight and prevent falls. Physical activity can even reduce depression and may improve cognitive abilities.”25 In order to encourage walking,
the Surgeon General urges a community-wide effort. This includes:
• Designing communities that make it safe and easy for people of all ages
and abilities to walk.
• Promoting programs and policies to support walking where people live,
learn, work, and play.
• Providing information to encourage walking and improve walkability.26
What is particularly interesting is that the report specifies actions that “Park
and Recreational and Fitness Facilities” can take in the effort to create walkable communities. “Evidence shows that people with more access to green
City of Bloomington, A Walk Through the Rose Hill Cemetery: Historic Tour Guide No. 12, No Date.
City of Bloomington, White Oak Cemetery,
http://bloomington.in.gov/locations/viewLocation.php?location_id=194 (accessed August 24, 2015).
25
Step it Up! A Partners Guide to Promote Walking and Walkable Communities, U.S. Public Health Service, Centers for Disease Control and Prevention, and Department of Health and Human Services (September 2015), p. 3.
26
Ibid., 5.
23
24

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41

environments, such as parks, tend to walk more than those with limited access. Health and fitness facilities offer group walking programs and access to
places for walking. Park and recreation planners can influence community
health by increasing access to parks and helping people find ways to walk
indoors in inclement weather.â&#x20AC;?27
The public would support efforts to increase walkability in Bloomington based
on results from the sample survey and community engagement meetings.
Public feedback indicates that trail development is at the forefront of community needs. Of the five most used facilities, three are trails (B-Line #1, Rail
Trail #3, and Clear Creek Trail #4). Of the most important facility types, trails
are first with 78.8% of residents stating it is important to them to have trails in
the city. When asked about allocating $100.00 in taxes across competing
priorities, construction of new walking and biking trails received the third most
money after maintenance issues. Also of note is what residents claim are the
benefits that they receive from the Department. The most important benefit
was improvement of physical health and fitness. Second was improvement of
mental health and stress reduction with 49%. With health and wellness being
of top importance, it is not surprising that people identified walking and biking
trails as being the facility type that most contributes to their wellbeing. The
walking, running, and biking that take place on trails are primary methods of
physical activity that people engage in to stay in shape. In the open-ended
section of the survey for this master plan, the most comments were about
building and expanding trails.
Given that trails are the most used facilities and the most important facilities,
contribute the most to community health, and are rated as one of the top
three categories for spending, trail expansion is supported by the community.
Additionally, expanded trails would meet with goals of the Surgeon Generalâ&#x20AC;&#x2122;s
Step it Up campaign and address gaps in Bloomingtonâ&#x20AC;&#x2122;s service areas for
parks and facilities.

27

42

Ibid., 8

Bloomington Parks and Recreation Department

Currently, Bloomingtonâ&#x20AC;&#x2122;s trails are located mainly in the north, central, and
south sides of the city. There are large gaps where trails could be expanded
in order to promote walking and connectivity to existing parks. Of particular
note are the gaps on the east and west sides of Bloomington. On the east
side, a large section of this area is also not covered by community parks or
sports parks. There are large neighborhoods on the east side of town that are
home to IU students and non-students alike. Sidewalk connectivity between
the east side and the IU campus is incomplete. Connections via trails could
potentially boost walking numbers and serve a vital transportation need as
roads become particularly busy on the east side during IUâ&#x20AC;&#x2122;s fall and spring
semesters. With Indiana University Health-Bloomington Hospital relocating to
the east side as well, there are potential connections to this new complex
that could be made, and trails on this side of town could be utilized by healthcare organizations to promote physical activity which the Department could
facilitate, giving the Parks and Recreation Department a firm role in improving

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43

and maintaining Bloomington’s community health. The trails could also spawn
partnerships with the hospital, public health departments, Indiana University,
and others.
Not only do Bloomington maps show gaps in service, but compared to
benchmark communities, Bloomington lags behind in average trail miles. The
five benchmark communities of Asheville, NC; Bend, OR; Boulder, CO; Iowa
City, IA; and South Bend, IN average 66.76 miles of trail compared to Bloomington’s 35.39 miles. With an average almost double Bloomington’s mileage,
the benchmark communities demonstrate that similarly sized cities can handle larger trail systems. With the health benefits that trails can facilitate as well
as the popularity of trails among the public, trail expansion would assist Bloomington in meeting the community’s health and recreation needs.
In the development of trails, designs that favor accessibility for people with
disabilities and that create a sense of security are important. The Surgeon
General points out that besides walking, jogging, and bike riding, wheelchair
rolling also promotes health. The current trails administered by the Department are accessible, and the Department needs to ensure this standard
continues to be met.
The Surgeon General also notes that people can be dissuaded from physical
activity when they feel unsafe, whether that is due to traffic or to a perceived
threat of violence or other crimes. The one criticism of the trails that public
engagement surveys highlighted was inadequate safety, either real or perceived, when using trails. When asked about barriers to participation, 18% of
people indicated that personal safety (i.e., parks and trails are not safe), was
their highest concern. Another 15% claimed that the ways to get to trails and
parks are not safe for walking. Finally, 17% reported that their neighborhood
did not have a park, trail, or facility within a 10-minute walk. Combined, these
barriers create a significant challenge to the use of Department properties.
An expanded trail system that focuses on personal safety, safe paths to use
the trail, and connections to places that do not have ready access to properties is paramount when development is considered.

44

Bloomington Parks and Recreation Department

Undeveloped Parkland

Undeveloped Parkland: Goat Farm

The Parks and Recreation Department currently has two undeveloped properties: Switchyard Park and Goat Farm. The Switchyard Park will become a
Community Park in the heart of Bloomington along the B-Line trail. The park,
once developed, has the potential to make people feel safer along the BLine trail: in its currently undeveloped state, it is a location that people cite
as a safety concern. The Switchyard Park has its own master plan (which
involved extensive public engagement) and the park is in development by
the Department as of the writing of this report. The park will feature 65 acres,
inclusive of sections of the B-Line Trail.
The Goat Farm, located on the southeast side of the city, is just north of
Sherwood Oaks Park and Olcott Park. It is connected to both parks via the
Jackson Creek Trail, and its acreage is inclusive of the Jackson Creek Trail.
The Goat Farm features many wildflowers, a barn, and a grain silo. There is
no formal parking for the Goat Farm. The nearest public parking is at Sherwood Oaks Park. With a neighborhood park, a Community Park, and a trail
all located along the property, using the Goat Farm as a Neighborhood Park
or Community Park is not a top priority. Perhaps the best use would be as a
nature preserve, since a large part of the southeast side of Bloomington is not
within a nature preserve service area.

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45

46

Bloomington Parks and Recreation Department

Recreation Facilities

Winslow Sports Park Tennis Courts

The following recreation facilities classifications are intended for use as guidelines to analyze and plan for a recreation facility inventory that represents and
reflects the interests of the Bloomington community, accounts for relevant
national trends, provides direction for future recreation facility management,
and fits within current and future funding levels. The table below provides a
summary of the current and projected LOS for each of these facilities based
on population.
Qty.

Trust for Public Land (TPL).
The LOS is for indoor and outdoor combined. There is no distinction between the two.
30
Only 6 of 100 cities studied by the Trust for Public Land featured LOS above 1.0. Over half of the communities
in the benchmark study had no ice rinks at all
28
29

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47

Recreation Facility Level of Service

The current level of service offered by the Department compared to TPL
and NRPA averages is very favorable. In terms of facilities currently offered,
Bloomington is only lagging in Dog Parks when reviewing the median number of facility types offered in communities. Bloomington currently offers one,
and the TPL median is 1.2. A dog park is currently part of the plans for the
Switchyard Park, which would address this deficiency. In terms of average
population per facility as recorded by NRPA, Bloomington once again offers
greater service than the national average in almost every category. The
exceptions are the ice rink and rectangular fields.
Based on research for the Master Plan, falling slightly behind in these categories is not a major concern. For rectangular fields, the Monroe County Parks
and Recreation Department offers over 10 fields for the community. Since
the County also hosts the areaâ&#x20AC;&#x2122;s soccer programs, the need of the community is readily satisfied. For ice rinks, NRPA indicates that only 14% of Departments nationwide have indoor ice rinks. Compared to these other communities that offer ice rinks, Bloomington is much smaller and farther south. The
expense of a new arena and the limited number of people who would use it
do not justify further expansion at this time.

Recreation Programs

Drool in the Pool is a fun, season-ending
event at Bryan Park Pool.

The Bloomington Parks and Recreation Department offers a variety of recreation programs and services to Bloomington residents. In this needs assessment, the Departmentâ&#x20AC;&#x2122;s programs will be analyzed for both specific
and overarching issues that constitute ways in which the department can
enhance its provision of services to the public and make the most effective
use of available resources. Programs and services were examined by using
national trend information provided by the Sports & Fitness Industry Associationâ&#x20AC;&#x2122;s 2015 Sports, Fitness, and Leisure Activities Topline Participation Report,
benchmark data, and information gleaned throughout the civic engagement process.
In general, a major priority of the Department is to make informed management decisions based on budgeting and financing metrics. In particular,
policy decisions regarding specific recreation programs are often made with
consideration of the extent to which the cost to deliver a program can be
recovered. However, decisions are increasingly informed by another factor:
the degree of social or public good that the program provides to the community. Social good programs differ from private good programs in that the
latter provide benefits that are generally exclusive to the participant, while
the former enhance the health, safety, and livability of the community.

48

Bloomington Parks and Recreation Department

Recreation Program and Service Classification

The Bloomington Parks and Recreation Department offers programs in the following categories. These categories are derived from Department Annual Reports.
• Twin Lakes Recreation Center
• Community Events
• Aquatics
• Adult Sports
• Youth Sports
• Frank Southern Ice Arena
• Operations/Shelter Rental
• Golf
• Health and Wellness Programs
• Banneker Community Center
• Natural Resources
• Youth Programs
This needs assessment will review each program area and synthesize findings to date regarding demand from the public, national participation trends
(when applicable), and other considerations.
In terms of total participation, the Department records close to 1 million per
year. Numbers for 2014 are not finalized as of the writing of this report, so it is
unclear whether the slight downtrend in participation that started in 2011 will
continue or not. In 2013, the last year with complete numbers, the Department recorded 993,925 participants in its programs.

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49

PART TWO

THE PLAN

The maintenance of existing parks, trails,
and facilities is one of the major goals of
this Master Plan.

CHAPTER 6

COMMUNITY VISION AND GOALS
Through public meetings, stakeholder interviews, surveys, benchmark community analysis, and national trend research, the Bloomington Parks and Recreation
Department Master Plan project team has identified six goals that will advance
community needs and reflect national trends in parks and recreation. Chapter
6 details these six goals and provides suggestions for policy and long-range
actions that the Bloomington Parks and Recreation Department should take in
order to achieve these goals. To be successful, the Plan will require the commitment and resources of the Department, City, other government agencies, local
businesses, user groups, and the general population.
The foundation of Bloomington Parks and Recreation is built on the Department’s
mission. The individual goals, objectives, actions, and recommended policies that
have emerged through the master plan process are informed by this mission.
Implementation of the specific policies and long-range actions in this chapter
will require incremental action planning and follow-through on a 1-to-5 year
basis. The most immediate actions and priorities for implementation are presented in Chapter Nine’s Implementation Plan, which will be updated on an
annual basis by the Department. Together, these goals, policies, and actions
provide a framework for implementing the Bloomington Parks and Recreation
Department’s Master Plan. To succeed, specific tasks as well as individuals
responsible for leading them will need to be identified as projects are moved
forward by the Department.

“Bloomington Parks and Recreation Department will provide essential services, facilities, and programs necessary for the positive development and wellbeing of the community through the provision of parks, greenways, trails, and
recreational facilities while working in cooperation with other service providers
in the community in order to maximize all available resources.”

Master Plan Goals

Six goals emerged from the community engagement and research process as
the basis for future action and decision-making for Bloomington’s Parks and Recreation Master Plan and align with the Department’s mission. The six goals are:
1. Maintain and Provide Safe Parks, Trails, and Facilities
2. Expand Department Trail System to Improve Connectivity with other Active Design Assets
3. Position Department Activities, Programs, and Partnerships to Positively
Impact Community Health
4. Continue to Provide High-Quality Programs, Events, and Recreational
Opportunities
5. Be Responsive to Development and Redevelopment Opportunities that
enhance the Park System
6. Consider adding or repositioning Department Resources so the Department can achieve its Master Plan Goals.
The goals featured in this Master Plan align well with the Department’s mission,
making the goals relevant to the Department in caring out its purpose for the
community. The resulting strategic direction from the Master Plan will focus
energy, commitment, and resources of the municipality, other departments,
local businesses, and user groups to revitalize and maintain parks, recreation
facilities, and programs as needed.
The remainder of this chapter will elaborate on the six goals. After a description of each goal and its supporting documentation, proposed departmental
policy statements are presented along with a set of long-range actions. Longrange actions describe the desired future condition of the Bloomington Parks
and Recreation system.

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53

Maintenance of existing facilities, like
this shelter at Winslow Woods Park, is
clearly the top priority for the Department for the next 5 years.

Goal #1: Maintain and Provide Safe Existing Parks, Trails, and Facilities
Description
The maintenance of existing facilities and parks was a consistent theme with
the public and civic leaders. According to the statistically valid survey conducted for this plan, respondents listed maintenance of existing parks and
facilities as the top two spending priorities for the Department.

â&#x20AC;&#x153;If it were up to you, how would you allocate $100 in taxes across these competing priorities?â&#x20AC;?
Average
Value

Continuing to provide existing community events and recreation
programs

$12.80

Continuing to provide existing sports programs and events

$10.62

Acquiring new parkland and open space

$9.90

Constructing new parks and facilities to meet community needs

$6.80

Other

$2.52

Total

$100.0

There is a clear preference for spending tax revenue on maintaining or enhancing existing park and recreation facilities. The Department will need to
identify ways to allocate resources to ensure the long-term viability of the
Parks and Recreation system for the future while addressing any maintenance
backlogs that exist.

54

Bloomington Parks and Recreation Department

Another factor in this focus on maintenance is benchmark and national data
that relates to operating expenditures per acre of land managed.
NRPA
Bloomington Asheville, NC

Bend, OR Iowa City, IA South Bend, IN Boulder, CO

National
Average

$3,812

$11,113

$7,446

$2,150

$9,583

$13,548

$7,666

Operating Expenditures per Acre of Land Managed

Based on data collected for this Master Plan, the Department spends less
on maintenance per acre of land managed than the national average and
less than four of the five benchmark communities selected for study. The
only department that spends less per acre is Iowa City, which has a smaller
population and fewer acres than Bloomington. Though survey respondents
generally rated the majority of the Department’s facilities to be in either good
or excellent condition, this condition will only deteriorate if insufficient attention is given to their care. With the addition of Switchyard Park and potential
trail expansion, planning a robust maintenance preprogram is essential if the
Department endeavors to keep facilities in good working order.
Policies
• The Bloomington Parks and Recreation Department shall seek out new
funding sources to support maintenance and rehabilitation activities. This
includes work in 2016 to reauthorize the 2001 bond that is set to expire in
early 2017. The Department can utilize the bond to provide direct funding of maintenance for its parks, trails, and facilities. Other options include efforts to allocate more tax funding directly to maintenance as an
investment in the infrastructure.
• The Department shall review the feasibility of proposed development of
any new park or facility assets based on community needs, potential users, projected participation analysis, funding methods, lifecycle cost pro
forma, and alternative development trade-off analysis. This will assist the
Department in anticipating the maintenance cost of the new asset.
• The Department shall continue to invest resources to train identified staff
members as certified playground safety experts to address potential
safety hazards.
• The Department shall promote the Park and Trail Ambassador Programs
that select community volunteers to proactively identify safety and maintenance issues.
• The Department shall engage in a community awareness campaign of
the availability of short-term rental space in City parks and facilities.

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55

Long-Range Actions
• In new developments, like Switchyard Park, provide multi-functional, flexible facilities that can accommodate a variety of unforeseen needs and
recreation use trends.
• Maximize the lifecycle of all assets through the proper use of maintenance principles.
• Highest priority parks, trails, and facilities are maintained in excellent
condition due to maintenance planning and sufficient FTE allocated for
required tasks.
• Move toward implementing a lifecycle approach to facility management that allows the Department to anticipate repair and renovation
dates and plan accordingly.
• Research asset management systems that track asset condition, critical
systems maintenance, and repair and rehabilitation requirements to assist with park and facility investment decisions.
• Establish a police substation at Switchyard Park that can provide a presence not only at that park but to the trails and parks that connect to it.
• Take measures to ensure that safety concerns will not be a significant
barrier to use of the Department’s parks, trails, and facilities.

Goal #2: Expand Department Trail System to Improve Connectivity
with Other Active Design Assets
Description
The City of Bloomington currently features a number of paved and unpaved
trails that citizens use for physical fitness and as alternative transportation
routes to work and businesses. The connections provide the community with
excellent opportunities for fitness in outdoor settings.
The already planned expansion of
Jackson Creek Trail aligns with this
Master Plan’s goal of improving and
expanding trails.

Based on community feedback, there is very strong support for the continued
maintenance of the Department’s current offerings and the expansion of
these trails to allow the community to be better connected to park facilities.
According to the survey, trails are the highest used constructed assets that the
Department administers and the most valued.
In addition to using trails at a high rate and highly valuing existing trails, the
community also supports allocating tax dollars toward “constructing new walking and biking trails.” Constructing these trails received the third highest amount
of money, averaging $15.09 of a theoretical $100.00 in tax money. Only maintenance spending topped trails in the response to this survey question.
Current plans are in place to expand several of Bloomington’s existing trails,
and research conducted for this Master Plan suggests that these plans should
move forward. This includes the extension of Jackson Creek Trial to the north
and south of its current location and a northern extension of the Cascades Trail.

56

Bloomington Parks and Recreation Department

Jackson Creek Trail Extension North from the roundabout at Winslow Road/Rogers Road up High
Street, with an Eastern Connection to Southeast Park.

The expansion of Jackson Creek Trail will add some needed service area on
the east side for walking and biking trails. There still is plenty of room on the
east side for more of these trails. Considering that the east side also lacks
sufficient service for community parks and sports parks, this area would be a
valuable place for expansion.
The City of Bloomington has many sidewalks, sidepaths, bike lanes, and bike
corridors that also support non-motorized transportation, and the contributions
of these assets should not be overlooked when developing plans for trails.
With this in mind, trails that are removed from vehicular traffic are much safer
to use because the chances of contact with vehicles are greatly reduced.
Since providing safe access to walking and biking opportunities is a priority,
the pursuit of designated non-motorized trails is still of paramount importance.

Currently the Departmentâ&#x20AC;&#x2122;s multi-use
trails are concentrated in the central
and southern parts of Bloomington. The
northern extension of Jackson Creek
Trail will expand coverage on the east
side and should be a priority.

Construction of the new Indiana University Health-Bloomington Hospital on the
east side of the city near the intersection of 10th Street and the State Road
45/46 bypass could represent an important opportunity to expand connections and walkable space that will connect the community to the hospital
and could be utilized for programs and services that promote healthy lifestyles. Coordination with both the Planning and Transportation Department
and Bloomington Transit will be imperative when planning any future trails.
Topographical concerns will need to be considered as well.
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57

Policies
• The Department shall categorize the list of trails and connections that are
marked for expansion and, to determine development order, create a
priority index based on the organizational mission, underserved populations, geographic distribution, service outcomes, and redundancy with
services provided by other organizations in the community. The Department will coordinate planning with the City Planning and Transportation
Department, Bloomington and Monroe County Metropolitan Planning
Organization (MPO), and other relevant organizations to consider existing bike paths and sidewalks that the City administers when planning
these trails.
• The Department shall pursue partnerships with interested organizations to
plan trails and facilities around the location of the new hospital near the
intersection of 10th Street and the 45/46 Bypass.
• The Department shall work with qualified entities to design trails using
sustainable materials to mitigate environmental impact.
• The Department shall seek out grants to assist in funding planning and
construction.
• The Department shall ensure that all new trail construction is in compliance
with the Americans with Disabilities Act. If trails are constructed with federal funds, they must also comply with the Architectural Barriers Act (ABA).
Long Range Actions
• Create a walkable/bikeable Bloomington that connects all sides of the
city via designated walking and biking trails that allow for safe, non-motorized travel across the city.
• Surround and connect the new hospital with walking and biking trails to
encourage healthy lifestyles and to provide assets that the hospital and
physicians can use to improve the lives of their patients.
• Create a healthier community where people have more opportunities
to use non-motorized methods of travel to go to work and school, thus
decreasing roadway traffic and environmental impacts.
• Pursue partnerships with Indiana University Health-Bloomington Hospital
and Southern Indiana Physicians that will enable the City to assist with
the development of land around the new hospital.
• Provide accessible information to the public regarding the trail system in
order to promote trail use and promote healthy activity and access to
nature.

58

Bloomington Parks and Recreation Department

Goal #3: Position Department Activities, Programs, and Partnerships
to Positively Impact Community Health
Description
The health of a community can have a significant impact on a city’s economy. A healthy community that has ample opportunities to improve physical
and mental health can incur lower healthcare costs and attract new residents. As a result, the promotion of community health by the Department can
play a significant role in the quality of life for Bloomington residents.

Survey respondents indicated that the
Farmers’ Market is the program that
contributes the most to their overall
health. The fresh food that is available
at the market is conducive to healthy
eating.

The Department can have a positive impact on community health through
the pursuit of certain activities, programs, and partnerships that have been
proven to support healthy lifestyles.
The community expects the Department to play a role in maintaining community health. According to the community survey, the opportunities the Department provides to improve physical health and fitness and to improve mental
health and reduce stress are the most important benefits the community
receives from the Department’s parks, trails, facilities, programs, and services.
The expectation that the Department improve physical and mental health is
supported by a wealth of research and national initiatives. For example, the
United States Surgeon General announced in 2015 a new initiative to promote
walking called “Step It Up.” The Surgeon General specifically calls for parks and
recreation departments to “influence community health by increasing access
to parks and helping people find ways to walk indoors in inclement weather.”31
31

United State Surgeon General, Step It Up! A Partners Guide to Promote Walking and Walkable Communities, p. 8.

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59

Several of the other goals in this Master Plan will support efforts to improve
community health, such as the maintenance and expansion of trails and the
promotion of fitness, sports, walking programs, and health/wellness programs.
Policies
• The Department shall continue to promote health and wellness through
programs in partnership with healthcare providers such as Indiana University Health-Bloomington Hospital and Southern Indiana Physicians.
• The Department shall continue to invest in walking and biking trails that
the community utilizes for exercise.
• The Department shall continue to offer programs that promote access to
nature and improve mental wellbeing.
• The Department shall insert wellness categories into program reviews.
• The Department shall align with Monroe County Health Department efforts to improve community health.
• The Department shall continue to provide healthy food choices via programs such as the Farmers’ Market and Community Gardens.
• The Department shall continue to incorporate traditional and innovative
marketing and branding strategies to promote health and wellness by
encouraging participation in Department programs and use of Department facilities.
Long-Range Actions
• Connect the new location of Indiana University Health-Bloomington
Hospital with other areas of the city via trails, and develop trails near the
facility to encourage wellness programs.
• Continue to provide access to nature areas such as Griffy Lake and
Leonard Springs, and encourage the community, particularly children, to
experience nature.
• Continue partnerships with healthcare providers to incorporate Department assets into programs designed to improve health.
• Continue to promote healthy lifestyle activities that improve the overall
health of the community, in partnership with the Action Communities for
Health, Innovation, and EnVironmental ChangE (ACHIEVE) initiative.

60

Bloomington Parks and Recreation Department

Goal #4: Continue to Provide and Promote High-Quality Programs,
Events, and Recreational Opportunities
Description
The programs and events that are directly provided by the Department and
those that are held on Department property while administered by outside
partners are very well received by the community. Of those who participate
in Department programs and events, 91% indicated that the offerings are
either “good” or “excellent.” The Farmers’ Market, community events, organized youth sports leagues/programs, and school vacation programs are
rated as the most important programs and events that the Department offers.
These programs and events have impressive attendance numbers, averaging
close to 1 million participations per year from 2010 through 2013.

Master Plan Project

Programs for youth, such as swimming
lessons, are viewed by the public as
important services that the Department
provides to the community.

61

The Department utilizes program evaluations for each of its offerings to provide honest reviews of the programs that it offers. The evaluation is part of the
PROMT database that the Department uses for planning, marketing, sponsorship and volunteer requests, goal setting, and evaluation. This system allows
the Department to determine how successful its programs and events are
and to make any needed adjustments to goals, budgets, and if needed, cuts.
Policies
• The Department shall continue its program and event evaluations and its
use of the PROMT database to monitor successes and challenges for its
programs and events in order to maintain the high evaluations obtained
from users and the general public.
• The Department shall continue its support of programs and events for
Bloomington youth and reduce barriers to participation by ensuring
financial aid is available so there are not barriers to quality programming
for children from resourced challenged families and neighborhoods.
• The Department shall continue working with the Parks Foundation to
lower barriers to participation.
• The Department shall work with Indiana University Health-Bloomington
Hospital, Southern Indiana Physicians, and other health organizations to
develop community health programs and physical assets near the location of the new hospital near 10th Street and the State Road 45/46 Bypass.
• The Department shall create a registration tracking program to ensure
participation numbers are recorded for all planned programs and events
held on Department property.
Long-Range Actions
• Continue to promote the Farmers’ Market as Bloomington’s go-to location for the purchase of fresh food in the promotion of healthy diets.
• Ensure that programs and events are more readily available across the
city and based in neighborhoods to eliminate potential access barriers.
• Continue to promote community cohesion by providing increased opportunities for interaction between people of various backgrounds.
• Programs and events at the Switchyard Park will provide new opportunities
and/or provide better accommodations for existing programs and sports.
• Respond to rapidly evolving community needs in partnership with other
organizations, as in the implementation of Break Days programs that
adjust to MCCSC school calendars.

62

Bloomington Parks and Recreation Department

Goal #5: Be Responsive to Development and Redevelopment
Opportunities that Enhance the Park System
Description
The City of Bloomington is well served by the Department’s parks, trails, and
facilities. Survey results indicate that the community wants the Department
to focus on maintaining existing parkland more than acquiring additional
parkland. However, there are some other data points that suggest strategic,
focused additions to the park system would be warranted.
Indiana University Health-Bloomington Hospital will be relocating its hospital to
land near the intersection of 10th Street and the State Road 45/46 Bypass on the
east side of the city. This means that the current hospital land will be open to new
use toward the end of this Master Plan cycle (2020). Committees and the hospital are discussing what to do with the vacated hospital space near the heart of
downtown. Considerations of park space should be part of this discussion.

In general, the level of service provided
by the Department’s parks, trails, and
facilities is well distributed. However,
there are gaps in service on the east
side of the city.

Based on GIS mapping, the far east side of Bloomington suffers from a lack of
service area for community parks and sports parks.
The east side, which is where the new hospital will be built, has many wellestablished neighborhoods as well as student housing. Residents on this side of
Bloomington live outside of the Department’s current service areas for community parks, which are the most used type of park in the city. To address this service
gap, the Department, possibly in collaboration with the Monroe County Community School Corporation, is interested in acquiring land off of Smith Road.
Policies
• The Department shall pursue membership on the City committee that
has been established to discuss the use of the land being vacated by
the hospital at its current location.
• The Department shall partner with Monroe County Community School
Corporation in monitoring land availability on the east side of the city for
a potential dual-use space that would include a community park and a
school.
• Connections between a possible new community park and the new
hospital location should be established to create a safe and accessible
walking/biking corridor that will promote non-vehicular travel and fitness.
Long-Range Actions
• Community parks will be more evenly distributed throughout the City with
the addition of a park on the east side.
• Partnerships with MCCSC and Indiana University Health-Bloomington
Hospital will lead to an improved park system that makes the best use of
available space in Bloomington.

Master Plan Project

In general, the level of service provided
by the Department’s parks, trails, and
facilities is well distributed. However,
there are gaps in service on the east
side of the city.

63

Goal #6: Consider Adding or Repositioning Department Resources so the Department can Achieve its Master Plan Goals
Description
In order for any public agency to fulfill its mission and goals, it must have sufficient staff to execute the plans that have been established by the City, the
park board, and its leadership. In 2015, the Bloomington Parks and Recreation
Department has a staff of 55 FTE and receives excellent marks for its programs,
services, parks, facilities, and trails. With the addition of the Switchyard Park, potential expansion of the trail system, and the need to maintain quality programming, the Department should pursue more FTE in order to meet public demand.

In 2015, the Department operates with
55 FTE, well below most benchmark
community numbers and the NRPA
national average.

Research on benchmark communities and national data indicate that Bloomington has a low number of FTE when compared to similar departments. In
total, Bloomington’s FTE are lower than 4 of the 5 benchmark communities
and far lower than the NRPA national average. Only Iowa City, IA has fewer
FTE. This number could be lower because Iowa City has approximately 11,000
fewer citizens and manages approximately 800 fewer acres of land. In terms
of both population and acreage, Asheville, NC and Bend, OR are similar to
Bloomington and yet each employs a staff of significantly more FTE.
Bloomington Asheville, NC
55

82

Bend, OR Iowa City, IA South Bend, IN Boulder, CO
92.5

47

90

118

NRPA
National
Avg. FTE
108

Full-Time Equivalents (All Staff)

The Department maintains much more acreage per FTE than the national
average and all benchmark communities that were studied for this plan. This
means the Department’s maintenance staff is stretched rather thin when
compared to similar communities.
Bloomington Asheville, NC
41.34

10.59

Bend, OR Iowa City, IA South Bend, IN Boulder, CO
29.35

36.0

14.4

15.7

NRPA
National
13.5

Acres of Parkland Maintenance per FTE (All Staff)

64

Year

Bloomington

NRPA

2010

15,154

2,553.5

2011

18,912

2,337.5

2012

18,551

2,216.2

2013

18,071

2,463.1

In terms of staffing for programming, Bloomington also lags behind the national average by a significant margin.
This high staff-to-population ratio is due in part to the popularity of the Department’s offerings. It is also due to the Department’s total funding. Though the
Department’s cost recovery rate of 37.93% is better than the national average and better than 4 of the 5 benchmark communities, its tax revenue and
total budget are below 4 of the 5 benchmark communities. Compared to the
communities that are closest in size to Bloomington (Asheville, NC and Bend,
OR), the amount of tax dollars allocated to the Department is much smaller.

Bloomington Parks and Recreation Department

Bloomington

Asheville,
NC

Bend, OR

Iowa City,
IA

South
Bend, IN

Boulder,
CO

NRPA
Median

Tax

$5.4
Million

$8.0
Million

$13.0
Million

$2.5
Million

$8.7
Million

$16.1
Million

N/A

Fees

$3.2
Million

$1.6
Million

$5.4
Million

$1.0
Million

$3.5
Million

$8.3
Million

$1.8
Million

Cost
Recovery

37.93%

17%

25%

40%

30%

33.3%

27.9%

Tax Revenue and Fees

What these numbers suggest is that the Department has a small workforce for
its maintenance and programming needs. Though the Department’s facilities
and programs receive very favorable ratings from the community, the addition of Switchyard Park, expansion of trails, regular upkeep of existing facilities,
and well-attended programs require more FTE in order for the Department to
maintain its reputation as a quality service provider.
Policies
• The Department shall pursue authorization of more FTE to assist with maintenance operations and the administration of its programs and services.
• The Department shall pursue reauthorization of its bond to support maintenance, which is set to expire in 2017.
• The Department shall continue to partner with local groups to provide
programs and services in an effort to keep costs down.
• The Department shall pursue an increase in its budget from the City
Council to meet the demands of the community.
• The Department shall continue to support and recognize the key role
played by an extensive volunteer workforce that makes significant
contributions to maintenance efforts and quality programming across all
program areas.
Long-Range Actions
• Additional sponsorship dollars and the sale of advertising space will keep
programs and recreational sports affordable, limiting barriers to participation.
• Increased FTE will support the goals of maintaining the Department’s current asset portfolio, allow it to adapt to the new properties that are under
development, and ensure that programs are staffed adequately.
• FTE needs are planned out for every year of this plan based on the number of employees that are needed to achieve work in a given year. This
information should be presented to the Board of Park Commissioners,
City Council, and Mayor as supporting documentation for increased FTE
and allocations.
• Promote development of the Department’s Park Foundation to assist
with funds for needed activities.

Master Plan Project

65

Conclusion

The six goals presented in this chapter provide a framework for addressing
the needs of the Parks and Recreation system that is informed by community
input and overall city planning guidance. Monitoring the effectiveness of the
policies and long-term goals is important to the success of the Department,
and efforts to evaluate implementation should be rooted in quality data.
Combined with the ongoing involvement of the Park Board, City Council,
stakeholders, and the community at large, the Departmentâ&#x20AC;&#x2122;s policy framework and action plan can be adjusted on a regular basis to ensure the continued provision of quality facilities and services.
â&#x20AC;&#x192;

66

Bloomington Parks and Recreation Department

CHAPTER 7

FINANCIAL FRAMEWORK
Introduction

Following the economic downturn of 2009, parks and recreation departments
across the nation faced challenging budgetary issues. In spite of the difficult
financial climate, the Bloomington Parks and Recreation Department strived to
provide high-quality facilities, programs, and services to the community. Budget
information provided by the Department demonstrates that the Department
has been able to keep its costs and revenues in balance with remarkable cost
recovery rates during a dramatic economic downturn. Since 2011, revenues
have steadily increased, eventually outpacing expenses in 2014.

To fund its operations, the Department primarily relies upon tax proceeds and
user fees for programs and services.
Running totals from 2010-2014 demonstrate a steady rise in operating funds
from 2011-2014. This modest but steady trend is encouraging for the Department and demonstrates a certain stability in its funding for programs and
events. This stability facilitates planning by obviating the need to expect and
accommodate wild fluctuations in funding levels.
Though funding for programs and events has been steady, funds for capital
projects and maintenance have been very low during this timeframe, including no funding in 2012 and 2013. This lack of funding will make it difficult to
meet Goal 1 in this Master Plan: to maintain and provide safe parks, trails, and
facilities. Though capital funding has been provided through TIF and other
non-traditional sources, they are temporary and not consistently allocated.

Master Plan Project

67

General Fund Accounts

Implications for the Parks and Recreation Master Plan

Funding levels and cost recovery for programs and events have been consistent for several years. Budget trends reflect an economic reality that is not
predicted to shift anytime soon, and it is within this reality that the Department
must plan for the future. What the Department and City must be cognizant of
is that costs in the next five years will increase. The construction of Switchyard
Park and new multi-use trails will necessitate more funding for maintenance,
as the workload for necessary repairs will increase as these new facilities are
added to the Departmentâ&#x20AC;&#x2122;s existing asset portfolio.

68

Bloomington Parks and Recreation Department

CHAPTER 8

SYSTEMWIDE PLAN
Introduction

The parks, trails, facilities, programs, and events provided by the Bloomington
Parks and Recreation Department form a quality parks and recreation system
enjoyed by the community. This system offers health and economic benefits
to Bloomington, and community members highly value the Department’s
facilities and services.
This chapter builds off of the financial information presented in the last chapter by presenting alternatives that will allow the parks and recreation system
to meet critical needs, maintain relevance with the community, and continue
to provide a high quality of life for the city. It lays out the alternatives by describing the system’s inter-related elements:
• Park, Trails, and Facilities – the land base that provides areas for active and
passive recreation as well as the location of parks and recreation assets.
• Recreation Programs – these are the planned activities that provide
instruction, socialization, competition, and learning to a wide range of
community members and visitors to Bloomington.
All of these elements fit together to form a park and recreation system that is
enjoyed by the entire community. Bloomington’s parks and recreation facilities provide broad benefits to the community including individual, social,
economic, health, and environmental benefits. Residents place a high value
on Bloomington’s facilities and services and have grown to expect high quality from the Department. The local economy benefits through attracting and
maintaining an educated and healthy workforce, the local tourism industry
benefits through attracting visitors for special events, and local businesses
benefit through increased sales, which in turn produce increased tax revenues for the City.
As proposed in these alternatives, the parks and recreation facilities along with
programs and services are unified into a single system with recreation services
and programs geared toward a healthy community. With the implementation
of this master plan update, the majority of Bloomington community members
will have recreation opportunities close to their home with safe, walkable connections to parks and recreation facilities throughout Bloomington.

Master Plan Project

69

Alternatives

The three alternatives listed below require the Department to prepare for a
future without increased revenue, with minor increases in revenue, or with significant increases in revenue. This approach acknowledges that fiscal reality
leads to the continuous rebalancing of priorities and their associated expenditures. Each tier of the three-tier spending plan reflects different assumptions
about available resources.
The FISCALLY CONSTRAINED alternative plans for prioritized spending within
existing budget targets. The intention of this alternative is to refocus and make
the most of existing resources, the primary goal for the department being to
maintain services and major facilities. The actions associated with the FISCALLY CONSTRAINED alternative are those that are mostly procedural or operational changes that require limited or no funding to accomplish.
The ACTION alternative describes the extra services or capital improvement
that should be undertaken when additional funding is available. This includes
strategically enhancing existing programs, beginning new programs, adding
new positions, or making other strategic changes that would require additional operational or capital funding. In coordination with the City Council and
the City Administration/Mayor, the Department would evaluate and analyze
potential sources of additional revenue, including but not limited to capital
bond funding, program income, grants, and existing or new taxes.
The VISION alternative represents the complete set of services and facilities
desired by the community. It is fiscally unconstrained but can help provide
policy guidance by illustrating the ultimate goals of the community and by
providing a long-range look to address future needs and deficiencies. In this
master plan update, the VISION alternative addresses aging facilities to make
improvements in operational effectiveness and the overall sustainability of the
parks and recreation system.

1. Continue current maintenance funding levels.
2. Pursue additional FTE to correspond with construction of Switchyard Park and trail
expansion.
3. Pursue grants for the development of trails that will expand Bloomingtonâ&#x20AC;&#x2122;s trail
system on the east side of the city.
4. Utilize Department parks and programs without any improvements to facilities.
5. Research potential asset management programs to track Department assets.

6. Complete ADA upgrades as necessary.
Estimated Tax-derived available funding: $5.52 million through current budget.

Generally meets community themes/goals as listed in the Constrained Alternative in
addition to the following:

1. Pursue grants for the development of trails that connect Bloomington with other
communities and trails that are solely within the city.

2. Selected neighborhood parks will be improved with upgraded equipment and
increased scheduled maintenance will occur.

3. One community park per year will be upgraded with updated equipment and
increased scheduled maintenance will occur.

4. Current parks maintenance will be emphasized through upgrades to critical park
facilities.

5. Pursue additional funding to support urban forestry, cemetery maintenance, and
roundabout and maintenance landscaping that the Department is required to
do for the City.
Funding increases from Taxes at continued 2.4% annual rate to $5.65 million budget.

Meets community themes/goals as listed in the Constrained and Action Alternatives in
addition to the following:

1. Pursue City funding for new trails and connections.
2. All neighborhood and community parks currently owned will be improved with
increased scheduled maintenance.

3. Five existing parks will be upgraded on an annual basis to meet adopted design
standards.

4. Land is secured for a community park on the east side.
Funding increases from taxes at a new annual rate of 5% to $5.79 million budget.

Master Plan Project

71

Programs and Events Strategic Alternatives

The development of systematic plans for programs and events and level of
service is usually less clear than planning for physical assets like parks and
community centers. Planning efforts rely on three factors that are not easily
quantified: cost recovery goals that translate into fees/charges for services,
market rates for fees/charges, and new program service initiatives based on
the community needs assessment.
In all three scenarios considered for this plan (Constrained, Action, and Vision), there is not much room for massive changes to programming. All told,
Bloomington’s cost recovery rate for its programs is above national averages. Significantly altering this process may hinder the Department’s ability to
provide high-quality programs. Bloomington residents especially value community events and sports for children, and these should receive prioritized
funding should more revenue become available. The Department also must
ensure that high fees do not create a substantial barrier to participation. Work
with the Parks Foundation on fee reduction should be a priority no matter the
scenario. Based on this information, the following scenarios are suggested.
Suggested fee reductions will vary greatly from one program to the next.
Fiscally Constrained
Scenarios

Vision Scenarios

• Pursue additional

• Additional FTE is

• Programming is ex-

Community Events

• Pursue additional

• Additional FTE

• Programming

Aquatics

• Pursue additional

• Additional FTE is

• Programming is ex-

Adult Sports

• Continue current

• Pursue additional

• Programming is ex-

Twin Lakes Recreation
Center

72

Action Scenarios

philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.

philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.
• The new Switchyard Park is
incorporated into
events.
philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.
policy.

pursued to support
maintenance and
administration

is pursued to
increase event
staffing levels.

pursued to support
maintenance and
administration.

philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.

panded to include
new activities in
addition to existing
offerings.

is expanded
throughout the city
to include parks
that may not offer
programming.

panded to include
new activities in
addition to existing
offerings.

panded to include
new activities in
addition to existing
offerings.

Bloomington Parks and Recreation Department

Youth Sports

• Pursue additional

• Additional FTE is

Health and Wellness

• Continue and

• Additional FTE

Frank Southern Ice
Arena

• Pursue additional

• Additional FTE is

Operations/ Shelter
Rentals

• Additional FTE is

• Shelters are added • Shelters are con-

Golf

• Shelters are con-

• Additional FTE is

Banneker Community
Center

• Pursue additional

• Additional FTE

• Programming is ex-

Natural Resources

• Pursue additional

• Additional FTE

• Programming is ex-

Youth Programs

• Pursue additional

• Additional FTE is

• Programming is ex-

Master Plan Project

philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.
expand collaborations with local
healthcare providers to increase the
reach of this programming area.
philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.
pursued for maintenance at current
shelters.
structed in existing
parks where need
is not met.
philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.
philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.
philanthropic
support via the
Bloomington Parks
Foundation to
reduce barriers
to participation in
programs.

pursued to support
programming.

• Programming is expanded to include
new activities in
addition to existing
offerings.

is pursued to
increase staffing
levels and support expanded
programming.

pursued for maintenance needs.

along trails to
increase potential
rentals.

• Programming is expanded to include
new activities in
addition to existing
offerings.

structed in existing
parks where need
is not met.

pursued for maintenance needs.

is pursued for
programming and
maintenance.

is pursued for
programming and
maintenance.

pursued for programming.

panded to include
new activities in
addition to existing
offerings.

panded to include
new activities in
addition to existing
offerings.

panded to include
new activities in
addition to existing
offerings.

73

CHAPTER 9

IMPLEMENTATION
Moving Forward

With the acceptance of this Master Plan, the Bloomington Parks and Recreation Department commits to the goals, policies, actions, and initiatives
contained herein. The Bloomington Parks and Recreation Department Master
Plan identifies the goals that the Department will use for implementation of an
annual “strategic action” planning process that will be an integral part of the
annual work plan and budgeting process.
With this master plan as a guide, the Department’s strategic action planning
process includes:
• Reviewing potential initiatives for the next five years,
• Developing a three-year action plan, and
• Establishing a deliberate, planned annual process of evaluating the
current year’s action plan with updated planning for the following three
years.
This approach is adopted to ensure that the Bloomington Parks and Recreation Department Master Plan is a living document that does not sit on a shelf
but instead is actively used to improve the overall system that reflects the
stated goals of the community well into the future.

The Annual Action Planning Process

The action planning process is simple in its approach. The purpose of this deliberate process, which begins prior to budget formation and in concert with
the Park Board, is to make mid-course adjustments in the three-year action
plan in order to make the most effective use of resources that meet community need. The Annual Action Planning Process is depicted in Figure 16 and
includes the following:
• Review the Master Plan.
• Review current year Action Plan and update status.
• Update the Needs Assessment, including review of local participation
and population data, national recreation and park trends, findings from
community engagement, levels of service, and the next two years of the
Action Plan.
• Develop and secure approval of next three-year Action Plan in tandem
with budget request to the City.
• Implement Action Plan.

74

Bloomington Parks and Recreation Department

Master Plan
Review

Plan
Implementation

Development/
Approval of
Next 3 Year
Action Plan

Status Report
on Current Year
Action Plan

Review of Next
2 Years of
Action Plan

Figure 16: Annual Action Planning Process

Conclusion

The framework for facility improvements will be directly tied to increases in
funding. The constrained plan includes some upgrades to existing facilities
and basic maintenance. Funding at Action and Vision levels will allow for additional resources to seriously address any maintenance backlog.
The forecast for programs and events is clear. In the constrained plan, ensuring that resources are directed toward the programs of highest community
benefit is paramount. Increases in FTE are pursued as a result. The Department
will make trade-offs between current programs to develop new ones and enhance programming that aligns with community priorities. Action and Vision
Alternatives demonstrate a greater change in programs and services to meet
community needs. Alternative funding sources allow for broader participation
and increased levels of service.

Master Plan Project

75

APPENDICES

APPENDIX A

PROGRAM PARTICIPATION
INFORMATION 2010-2014
Adult Sports and Fitness Total Participation

Financial support provided by the Indiana University School of Public Health-Bloomington, the Indiana University Department
of Recreation, Park, and Tourism Studies, and the Bloomington Parks and Recreation Department. The Eppley Institute for
Parks and Public Lands at Indiana University provided in-kind contributions for public engagement, research, and project
management.